The creation and propagation of books are fundamental pillars of any nation’s intellectual, cultural, and educational advancement. Books serve not only as repositories of knowledge, wisdom, and heritage but also as crucial instruments for fostering literacy, promoting critical thinking, and shaping national identity. In a country as vast and diverse as India, with its multitude of languages, cultures, and educational aspirations, the systematic development and regulation of the book industry necessitated a comprehensive strategic framework. Such a framework would guide the production, distribution, and consumption of books, ensuring their accessibility and relevance to a diverse populace.

The need for a coherent national strategy governing the book sector became increasingly apparent in post-independence India, as the nation embarked on ambitious programs of socio-economic development and mass education. While various initiatives were undertaken by different governmental and non-governmental bodies, the absence of an overarching policy often led to fragmented efforts and inefficiencies. A dedicated policy was envisioned to address the complex challenges faced by the Indian book industry, from enhancing indigenous authorship and promoting regional languages to improving production quality and expanding reading habits across all segments of society. This holistic vision paved the way for the formulation of India’s National Book Policy.

The Preparation of India’s National Book Policy (1986)

The National Book Policy in India was prepared in 1986. Its formalization was a significant milestone, representing a concerted effort by the Indian government to systematically address the multifaceted aspects of book promotion and development within the country. This policy was intricately linked with the broader educational reforms encapsulated in the National Policy on Education (NPE) 1986, which laid down a comprehensive framework for the nation’s educational system. The book policy was essentially seen as a critical supporting pillar for achieving the educational and cultural objectives outlined in the NPE.

Historical Context and Antecedents Leading to the 1986 Policy

The journey towards a comprehensive book policy did not begin in 1986; it was the culmination of decades of evolving thought and fragmented efforts since India gained independence. In the early years, the focus was primarily on expanding basic literacy and primary education, with textbooks dominating the publishing landscape. The government established key institutions to support the book sector. The National Book Trust (NBT) was founded in 1957 with the mandate to promote books and the reading habit, publish good literature at affordable prices, and organize book fairs. The Raja Rammohun Roy Library Foundation (RRRLF) was established in 1972, primarily to support public library development. These institutions, along with the Publications Division, Sahitya Akademi, and various university presses, played crucial roles in fostering a nascent book culture.

However, the Indian book industry faced myriad challenges. Low literacy rates, particularly in rural areas, limited the readership base. The high cost of production, especially for quality books, made them inaccessible to a large segment of the population. Distribution networks were weak, particularly for books in regional languages, leading to a concentration of publishing activities in major urban centers. There was a dearth of professional training for authors, editors, and publishers. Piracy was (and remains) a persistent problem, undermining the legitimate industry. Furthermore, the sheer linguistic diversity of India, while a cultural strength, presented a complex challenge for standardized book production and promotion.

The Kothari Education Commission (1964-66), while primarily focused on education, strongly emphasized the importance of books and libraries in the educational process. Its recommendations implicitly highlighted the need for a coherent strategy regarding book availability and quality. Throughout the 1970s and early 1980s, discussions gained momentum regarding the need for a dedicated policy framework that could synthesize the various governmental and private efforts and provide a unified direction. Various professional bodies, publishers’ associations, authors’ guilds, and library associations consistently advocated for such a policy to foster a more robust and equitable book ecosystem. The imperative was clear: to move beyond ad-hoc measures and establish a systematic, long-term vision for the book industry.

The Formulation Process of the 1986 Policy

The preparation of the National Book Policy 1986 was a consultative process involving various stakeholders under the aegis of the Ministry of Human Resource Development (then Ministry of Education). It drew insights from academicians, publishers, authors, librarians, government officials, and cultural experts. The underlying philosophy was rooted in the understanding that books are not merely commodities but essential tools for national development, cultural preservation, and individual enlightenment. The policy aimed to create an environment conducive to the flourishing of authorship, publishing, and reading.

A series of deliberations, workshops, and committee meetings contributed to the final shape of the policy document. Experts examined existing infrastructure, market dynamics, literacy levels, and the potential of indigenous publishing. The policy sought to balance the commercial interests of the publishing industry with the broader social and educational goals of the nation. It recognized the dual nature of books as cultural artifacts and economic goods, requiring a nuanced approach that supported both their market viability and public accessibility.

Key Objectives and Provisions of the 1986 National Book Policy

The National Book Policy 1986 outlined several ambitious objectives and provided a framework for their realization. Its core tenets revolved around promoting a vibrant book culture across the country.

  1. Promotion of Reading Habits: A primary objective was to inculcate and foster the habit of reading among all sections of the population, especially children and neo-literates. This included encouraging the establishment of reading clubs, promoting library usage, and launching campaigns to highlight the joys and benefits of reading.

  2. Accessibility and Affordability of Books: The policy aimed to ensure that books, particularly educational and general interest books, were available at affordable prices across the country. This involved exploring measures such as subsidized paper, tax incentives for publishers, and efficient distribution channels, including public libraries and book post services.

  3. Support for Indigenous Authorship and Publishing: Recognizing the importance of locally relevant content, the policy emphasized the need to encourage and support Indian authors, especially those writing in regional languages. It also sought to strengthen Indian publishing houses by promoting professional standards, providing training, and facilitating access to finance and modern technology.

  4. Enhancement of Book Production Standards: The policy stressed the importance of improving the quality of book production, including design, printing, and binding, to meet international standards. This was crucial for enhancing the appeal of Indian books both domestically and internationally.

  5. Development of Libraries and Distribution Networks: Libraries were identified as crucial institutions for promoting reading. The policy advocated for strengthening public and institutional libraries, ensuring their equitable distribution, and modernizing their services. It also aimed to expand and rationalize distribution channels, especially in remote and rural areas.

  6. Addressing Copyright Issues: Protection of intellectual property rights was a key concern. The policy acknowledged the need for robust copyright enforcement mechanisms to safeguard the interests of authors and publishers and to deter piracy.

  7. Professional Development: Recognizing the specialized nature of the book industry, the policy encouraged the establishment of training programs for various professionals involved in the book chain, including authors, editors, designers, printers, and booksellers.

  8. International Cooperation: The policy also envisioned promoting the export of Indian books and facilitating the import of essential foreign books, thereby encouraging cultural exchange and access to global knowledge. It also aimed to encourage translations between Indian and foreign languages.

  9. Role of Government Agencies: The policy clearly defined the roles of various government agencies, such as the NBT, RRRLF, and the Ministry of Human Resource Development, in implementing its objectives. It encouraged coordination among these bodies and with private sector players.

Impact and Limitations of the 1986 Policy

The National Book Policy of 1986 undeniably provided a crucial framework that influenced the Indian book industry for decades. It brought a degree of coherence to previously disparate efforts and fostered greater collaboration among stakeholders. The policy contributed to an increase in indigenous book production, particularly in the educational sector. It catalyzed discussions on intellectual property rights and encouraged some level of professionalization within the industry. The NBT continued its work of organizing national and international book fairs, expanding its outreach, and RRRLF continued its support for libraries.

However, the policy also faced significant limitations in its implementation. While ambitious in scope, the actual on-ground impact was often constrained by various factors. Adequate funding for many of the proposed initiatives remained a challenge. The vastness and diversity of India meant that uniform implementation was difficult. The pace of library development, though supported by RRRLF, was slower than anticipated. Reading habits, while encouraged, did not see a dramatic or widespread shift, particularly among the adult population, despite literacy drives.

Furthermore, the policy, formulated in the mid-1980s, could not foresee the revolutionary changes that would sweep the world in the subsequent decades. The economic liberalization of the 1990s dramatically altered market dynamics, bringing in new players and changing consumption patterns. More profoundly, the advent of the internet and digital technology—e-books, online retail, digital publishing platforms, and social media—transformed the entire publishing landscape, creating new opportunities and challenges that the 1986 policy was not equipped to address. Issues like digital piracy, the rise of self-publishing, the declining relevance of physical bookstores, and the competition from other forms of media were unforeseen.

Calls for Revision and Subsequent Developments

The limitations of the 1986 policy, especially in the context of rapid technological advancements and evolving societal needs, led to growing calls from various segments of the book industry and cultural sector for a revised, updated national book policy. Stakeholders recognized that a new policy needed to address the digital revolution, globalized markets, intellectual property in the digital age, and the changing landscape of education and literacy.

One significant attempt to draft a new policy emerged in the early 2000s. Around 2004-2005, a “Draft National Book Promotion Policy” was prepared by a task force constituted by the Ministry of Human Resource Development. This draft aimed to update the 1986 policy by incorporating the realities of the digital age, addressing issues like online piracy, promoting digital literacy, and fostering a global outlook for Indian publishing. It also emphasized public-private partnerships, the role of IT in book promotion, and enhanced support for authors and translators. While this draft was widely discussed and presented, it did not formally replace the 1986 policy as the definitive “National Book Policy” for India in the same comprehensive and official capacity as its predecessor. Its proposals, however, contributed to ongoing discussions and informed various governmental initiatives related to the book sector.

In subsequent years, various other reports and committees continued to deliberate on the challenges and opportunities facing the Indian book industry. Initiatives like the National Digital Library of India (NDLI), launched in 2018, exemplify the government’s efforts to leverage technology for universal access to knowledge resources, reflecting a shift towards digital platforms for book and content dissemination.

More recently, the National Education Policy (NEP) 2020 has renewed focus on foundational literacy and numeracy, multilingualism, and access to high-quality learning materials. While not a dedicated “book policy,” NEP 2020’s emphasis on reading promotion, library development, and the creation of engaging content, particularly in Indian languages, implicitly provides a contemporary framework that heavily influences the trajectory of the book industry. It underscores the critical role of books and reading in achieving broader educational goals, suggesting that future book-related policies will likely be integrated within or closely aligned with the overarching educational framework.

The original National Book Policy, prepared in 1986, served as a foundational document for the development of the book industry in India for several decades. It articulated a clear vision for fostering reading habits, supporting indigenous authorship, and strengthening the publishing ecosystem. However, the dynamic shifts in technology, market forces, and educational paradigms necessitated ongoing adaptation and reconsideration of its provisions. While no subsequent comprehensive “National Book Policy” has officially replaced the 1986 document in its entirety, the continuous dialogue, various draft policies, and specific governmental initiatives reflect an evolving understanding of the book’s pivotal role in national progress.

The challenges and opportunities facing the Indian book industry today are vastly different from those of 1986. The landscape is characterized by the dominance of digital platforms, the imperative of digital literacy, the rise of audiobooks, and the need to cater to a young, tech-savvy population while simultaneously addressing the foundational literacy needs of a significant segment of society. Consequently, the spirit and objectives of the 1986 policy, which emphasized accessibility, affordability, and the promotion of reading, continue to resonate, albeit requiring reimagination within a contemporary framework. The journey of crafting and implementing policies for books in India remains a continuous process, adapting to changing times while upholding the timeless value of the written word.